PROPOSAL FOR THE ESTABLISHMENT OF A MANAGEMENT STRUCTURE FOR THE COMMUNITY ON-LINE INTELLIGENCE SYSTEM (COINS)

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP80B01139A000100120006-4
• Release Decision: RIPPUB
• Original Classification: S
• Document Page Count: 25
• Document Creation Date: January 4, 2017
• Document Release Date: July 14, 2005
• Sequence Number: 6
• Publication Date: January 17, 1968
• Content Type: MF

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DRAFT: 17 January 1968
MEMORANDUM FOR: Chairman, United States Intelligence Board
SUBJECT:
Proposal for the Establishment of a
Management Structure for the
Community On-Line Intelligence
System (COINS)
REFERENCES: A. White House Letter, dtd 15 June 1965,
Memorandum for the President,
Subject: U. S. Intelligence Community
Capabilities for the Handling of Intelli-
gence Information
B. White House Letter, dtd 15 July 1965,
Memorandum for the Director,
Central Intelligence Agency,
Subject: U. S. Intelligence Community
Capabilities for the Handling of Intelli-
gence Information =
1. In accordance with the White House letters, referenced
above, a secure network connecting several computer information
systems is being established for operational test and evaluation. CIA,
NSA, DIA, State and NPIC are currently involved. The title being
used for this experimental project is Community On-.Line Intelligence
System (COINS). Using COINS, each participating agency will be able
to interrogate selected files of the other participating agencies as well
as its own files. This concept calls for each agency to maintain files
in its own computer system and for the computer systems of each
agency to communicate with those of other agencies via secure data links.
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The proposed requirement for one agency to serve as the central
file repository for the entire intelligence community would be
removed. Instead, each agency would concentrate in establishing
and maintaining those files for which it is responsible or best equipped.
Improvement of interchange of information between intelligence
agencies is the principal objective of this system.
2. This memorandum, with attachments, recommends a
USIB policy governing the management during the development and
evaluation phase of COINS. It identifies and delineates the functions
of the System Executive Agency and the COINS Managers in each
participating organization. It further defines actions expected of
participating organizations to realize optimum test and evaluation of
this experimental informational handling system.
3. It is recommended that USIB:
a. Approve the management system for COINS as
set forth in the attachment hereto and direct its implementation;
b. Designate the National Security Agency (NSA) as
the Executive Agency.
JOHN A. BROSS
D/DCI/NIPE
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,Management System for the Community On-Line
Intelligence System (COINS)
SECTION I - PURPOSE
1. The purpose of this Directive is to establish within USIB,
and under the direction of the DCI, a management structure for the
Community On-Line Intelligence System (COINS). It identifies and
delineates the functions of the System Executive Agency and the COINS
Managers in each participating organization. It further defines actions
expected of participating organizations to realize optimum test and
evaluation of this experimental informational handling system.
2. It is understood that this Directive concerns the time
frame of the experimental COINS system (sometimes referred to as
COINS I) and does not address the management problem of any on-going
system which may be considered following the evaluation of COINS.
SECTION II - DEFINITIONS
3. Following are definitions of terms used in this Directive:
a. Executive Agency: A participating organization
providing,the Executive Agent, and all supporting facilities and
services to the Executive Agent and his staff.
b. Executive Agent: A designated individual in the
Executive Agency assigned the responsibility and delegated the authority
by the Director of Central Intelligence (DCI) for COINS management.
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c. System Management: A concept for the over-all
management of COINS based on the use of an Executive Agent
responsible for planning, directing and controlling the development,
implementation and operation of COINS; and, for assuring that planning
is accomplished by the organizations responsible to the management
authority for the execution of specifically assigned and agreed-upon
tasks.
d. COINS Manager: A designated individual in a
participating organization assigned the responsibility for the manage-
ment of COINS within that organization.
e. Project Leaders: Military and civilian personnel
assigned a specific task who report directly to the Executive Agent.
f. COINS Management Office: The organization
comprised of technical and business management and administrative
personnel assigned full time to the Executive Agent. The Office may
be augmented with additional personnel from participating organizations.
g. Executive Agent Charter: This Directive establishes
an Executive Agent and his Management Office; defines his mission,
4
authority, and major functions and describes his relationships with
other organizations and their support responsibilities. In addition,
it sets forth basic policy with respect to the management of COINS.
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h. Participating Organization: A governmental
activity, responsible to the Executive Agent for the execution of
specific aspects of the system and identified by the chartering
authority, if within his authority, or identified in the approved,
negotiated COINS Master Plan, or Technical Memorandum of Agree-
ment, if the activity is not responsible to the chartering authority.
i. COINS Master Plan: A compilation of planning
documents prepared by the Executive Agent, with assistance from
the COINS Managers of the participating organizations and contractors,
which places in context the budgets, plans, schedules and scope of all
work and resources to be provided by each participating organization.
j. Technical Memorandum of Agreement: A formalized
document delineating specific procedural and operational agreements
between COINS participants, and binding on all signatories.
SECTION III: - EXECUTIVE AGENCY
4. The DCI, in consultation with USIB, will designate the
Executive Agency.
5. The Executive Agency will serve as host and will provide
facilities and support services required by the Executive Agent in the
execution of his responsibilities. These include but are not limited to:
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a. Office space and services for the Executive Agent
and his staff, including secure conference facilities.
b. Reproduction facilities.
c. Consultant services of co-located activities such
as, security, COMSEC, R&D, communications, data processing, etc.
d. A fiscal account for the COINS Management Office
for collecting, holding and disbursing operating funds provided by the
participating organizations. Account will be supervised by the
comptroller of the host organization.
e. Procedures by which the Executive Agent can
negotiate contracts.
f. Data processing service that may be required for
the management of COINS (e.g., personnel lists, PERT, etc. ).
Basic staff. (This staff will be augmented by the
participating organizations as required. )
h. Personnel, fiscal and administrative services and
support required.
SECTION IV - EXECUTIVE AGENT
6. The Director of the Executive Agency, in consultation with
the DCI, will appoint the Executive Agent.
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7. The COINS Executive Agent is responsible to the Director
of Central Intelligence (DCI) for the administration of the COINS
program within.the USIB community as well as representing the program
with other organizations as may be required.
8. The Executive Agent will be responsible for:
a. Coordinating his actions or proposed actions with
the appropriate COINS Managers of the participating organizations
involved. Conflicts will be referred in writing to the Chairman of the
Information Handling Committee for resolution or consideration by
USIB as may be appropriate.
b. Yearly submission of a COINS Master Plan to USIB
through the Chairman of the Information Handling Committee.
9. The Executive Agent, in cooperation with the COINS
Managers in each participating organization, will:
a. Develop, coordinate and obtain USIB approval of a
set of short, medium and long range objectives for the COINS program,
including an implementation schedule.
b. Coordinate COINS budgets, plans and programs
of each participating organization to achieve the approved objectives
within the desired time frames.
c. Prepare the COINS Master Plan which integrates
into a single package the budget, plans, programs, implementation
schedules, and resources for COINS of the participating organizations.
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d. Monitors the implementation of the approved
COINS Master Plan.
all Establish and maintain direct communications with
the COINS Managers in each participating organization. Periodic
meetings of the Executive Agent and COINS Managers will be held for
the purpose of implementing objectives, developing principles of
operation and procedure, and highlighting problem areas beyond the
jurisdiction of the COINS Manager or agency to solve.
f. Prepare recurring or special progress reports
identifying successful milestones or problem areas indicating remedial
action taken to resolve identified problems.
Monitor and analyze the program on a continuing
basis, particularly with respect to technical performance, schedules
and costs.
h. Assign technical responsibilities of specific tasks
to a participating organization through the use of a Technical Memorandum
of Agreement.
i. Organize working groups and appoint chairman to
investigate problem areas and make recommendations.
j. Identify COINS R&D requirements and negotiate their
assignment to one of the participating agencies for action.
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k. Develop an interagency COINS training program
as may be required, making maximum use of existing training facilities.
1. Develop a security program consistent with existing
regulations.
m. Negotiate for the services of other governmental
organizations (e.g., GSA, DCA, ARPA, etc.).
n. Enter into contractual arrangements to acquire the
services of private contractors, consultants or non-profit organizations
) in accordance with the existing
directives and procedures governing contracts of the Executive Agency.
Provide supervision of contractor activities.
o. Draft, coordinate and publish directives, conventions
and guidelines, and procedures with respect to the operation of COINS.
10. The Executive Agent has no authority to direct or manage
the internal operations of participating organizations. However, he
can task a participating organization by negotiating a Technical
Memorandum of Agreement (TMA) with the COINS Manager of the
participating agency concerned. The participating agency is responsible
y
for executing an approved agreement.
11. The Executive Agent can use his operating funds for:
(a) travel, (b) procurement of experimental or specialized equipment,
(c). contract system studies which span more than one organization, and
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(d) R&D tasks of common concern but which no participating
organization is willing to accept and sponsor.
SECTION V - PARTICIPATING ORGANIZATIONS
12. Each organization participating in the COINS program
a. Appoint a COINS Manager who will be responsible
(1) Representing their organization on all
aspects of the COINS programs.
(2) Managing the COINS.program within their
own organization.
(3) Developing and coordinating all phases of
COINS activities within his organization.
(4) Providing information necessary for the
development of the COINS Master Plan.
b. Provide the equipment, software, personnel, funding,
and contractor resources required for its own COINS facilities.
Communications line costs from the central switch to each department
or agency will be borne by the agency concerned. During the experimental
development and evaluation phase of COINS, DIA will provide the
central switch.
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c. Insure that its agency's program plans and budgets
contain the resources required to meet the approved objectives and
implementation schedule.
d. Prepare and submit recurring or special reports
to the Executive Agent as may be required.
e. Provide assistance to the Executive Agent in the
development of implementation schedules.
f. Appoint appropriate technicians to serve on working
groups organized by the Executive Agent.
g. Annually, commencing in FY 1969, transfer to the
account of the COINS Management Office at the host organization a
sum of money as approved in the COINS Master Plan for general systems
costs not attributable to any single department or agency. This will
serve as an operating fund to be used by the Executive Agent in execution
of his duties.
SECTION VI - INFORMATION HANDLING COMMITTEE
13. The Information Handling Committee of USIB will act
as the staff agency responsible for monitoring for the DCI and USIB
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the activities of the Executive Agency. Specifically, the Information
Handling Committee will:
a. Endeavor to resolve all problems between the
Executive Agent and the COINS Managers.
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b. Provide guidance to the Executive Agent on the
development of short, medium and long range objectives.
c. Provide guidance to the Executive Agent with
respect to policy and plans.
d. Make recommendations to USIB concerning
approval or modification of the yearly COINS Master Plan.
e. Provide guidance to the Executive Agent on
substantive intelligence requirements for the COINS system.
f. Conduct periodic operational and technical evaluations
of the COINS system and report the results to USIB.
SECTION VII - COINS MANAGEMENT OFFICE
14. The Executive Agency will be authorized a staff of at
least five people, including a secretary. This will constitute the COINS
Management Office and be located in the Executive Agency. Major
USIB members (i. e., CIA, DIA or NSA) will be expected to provide
the staff according to the following ratio:
a. Executive Agency will provide, in addition to the
Executive Agent, a basic staff of two senior technicians specializing
in data systems at the GS-13/14 level and a secretary at the GS-5/7
level.
b. Participating organizations will each provide one
data systems analyst at the GS-12/13 level.
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SECTION VIII - REPORTING
15. The Executive Agent for COINS will prepare and deliver
oral and written reports as may be required. He will be responsible
for submitting the following periodic reports to the organizations
indicated:
a. A report containing objectives and an estimate
of the resources required from each agency to achieve these objectives.
This report will be submitted to each participating organization in
June each year. This will allow them sufficient lead time to reclama
and enter it into their budget, program and plan.
b. A quarterly status report to each participating
agency as well as to the USIB Information Handling Committee, USIB
and other interest organizations.
c. A COINS Master Plan each year to USIB.
SECTION LX - IMPLEMENTATION
16. This Directive is effective on date of publication.
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COINS PROJECT MANAGER
NATIONAL SECURITY AGENCY
Fort George G. Meade, Md.
COINS OPERATIONAL PROCEDURE
I. AUTHORITY
1. USIB-D-39.1/9, "Community On-line Intelligence System",
11 April 1968,
2. USIB-D-71.4/1, "Management of the COINS Experiment",
3 June 1968, paragraph 41, page 3,
II. PURPOSE
This Operational Procedure sets forth the:
1. Terms of reference and procedures of a COINS Data Base Panel.
2. Recommended criteria to be used by participating agencies in
the selection of files in the COINS Experiment.
3. Procedures for the selection, deletion and modification of files
in the COINS Experiment.
4. Minimum acceptable file maintenance schedule for all files in
the COINS Experiment and procedures for modifying the schedule when
required.
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III. DEFINITIONS
1. Defined below are four kinds of action that may be taken with
respect to COINS files:
a. Addition: The addition of a new file to the COINS
Experiment.
b. Deletion: The deletion of a file previously selected and
available in the COINS Experiment.
c. Modification:
(1) The addition, modification, or deletion of elements
of information in files in the COINS Experiment.
(2) The addition or deletion of specific sources of
information used in maintaining information in a file.
(3) Change in the scope of a file (e.g., the Soviet Airfield
file might be expanded to include information on CHICMM airfields).
d. Schedule Change: Any change in the maintenance schedule of
a COINS file (e.g., file maintenance changed from once a week to daily).
2. Two types of files can be maintained in and accessed through COINS
a. Primes Files: The DCI or his representative will provide
guidance on substantive intelligence files to be included in COINS. These
files will be referred to as "primary files".
b. Secondary Files: All files not designated as primary will be
considered as "secondary files".
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IV. BACKGROUND
1. Af specifically stated objective of the COINS Experiment is to
improve the exchange of information within the U.S. intelligence community.
For the COINS Experiment to be successful, the information in the files
must be useful, current, accurate, complete and timely.
2. Procedures currently exist by which COINS participating agencies
can levy a requirement on another organization to build and maintain a
computerized file to meet specific needs of the requesting agency. The
procedures established herein are not intended to aborogate those procedures,
but are intended to insure that such requirements receive the broadest
possible considerations by all COINS participating agencies before final
actions are taken.
3. Files originally selected for the COINS Experiment were those
nominated by the COINS participants. These files existed in a machine
medium and had been initially established to satisfy requirements of the
sponsoring organization. Procedures must be established to modify the
scope and content of such files to insure that they meet the information
requirements of all participants. The major subject area of concentration,
Soviet biographies, was selected by the PFIAB.
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V. COINS DATA BASE PANEL
1. A COINS Data Base Panel comprised of the COINS Project Manager
as Chairman and participating agency sub-system managers will consider
all aspects of file management under the terms of this directive.
Specifically the Panel will be responsible for:
a. Implementing the procedures of this directive and recommending
modification as required.
b. Maintaining liaison with other JSIB Committees which
may identify or develop data bases for COINS (e.g., COMIREX Data Base
Working Group, Intelligence Guidance Sub-Committee, etc.).
2. Panel Procedures
a. The panel will respond only to a written requirement from
one of the participating agencies or higher authority.
b. The Chairman will convene this Panel to act on all written
requirements to:
(1) Add, delete, modify, or change the file maintenance
schedule of a primary or secondary file.
(2) Resolve duplicate or similar files in COINS regardless of
whether they are identified as a primary or secondary files.
c. Panel recommendations involving secondary files will be
regarded as final unless there is a dissenting opinion from a participating
agency. In this situation the Chairman will attempt to resolve the
problems involved.
d. Panel recommendations involving any aspect of primary files
will he referred to the DCI or his representative.
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VI. FILE PROCEDURES
1. The addition of files to COINS may result from:
a. Bilateral agreements between two or more agencies.
b. Guidance from the DCI or his representative on substantive
intelligence files in COINS (Primary files).
c. Requests from other USIB committees (e.g., COMIREX, IIUUC, etc.).
d. Unilateral announcement of file availability by a COINS
sparticipant in which at least one other participating agency expresses
an interest.
2. Recommended Criteria for Selection of Files: One or more of
the following criteria should be used by participating agencies in the
selection of files for the COINS Experiment. These criteria are not
necessarily listed in order of priority importance.
a. The file should contain substantive information, and not
merely processing techniques, parameters, or definitions.
b. The file should be of interest to analysts in more than one
participating agency.
c. The file should get reasonably heavy use.
d. The file should be active, i.e., require frequent updating.
e. The file should be available in machine language by the
time the COINS network is activated.
f. The file should contain sufficient data elements to permit
a considerable degree of manipulation.
g. The file should be reasonable complementary.
h. Priority should be given to files in the Soviet biographic
area, in view of P#FIAB Recommendation No. 2 of 15 June 1965.
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3. Addition of a New File: Any agency participating in the COINS
Experiment can request another participating agency to establish and
maintain a file in the system or announce the availability of a file.
a. Sponsoring or RequestinnA ey: The Agency sponsoring
or initiating the request for a file will submit such information in
writing to the COINS Project Manager
(1) Name or subject area to be included in the file.
(2) Name of agency suggested to build and maintain the
(3) Requirement for the file in the system.
(4) Span of time records or information in the file should
(5) Acceptable frequency at which the file should be updated.
(6) Minimum elements of information to be included in each
record to satisfy the requirements.
(7) Sources of information to be used in establishing and
maintaining the file.
(8) Security classification.
b. Role of COINS Data Base Panel : The Panel will develop a
consolidated requirement for the file by circulating the request or
announcement to all other participating organizations. When all comments
have been received and integrated the request will be forwarded to the
organization which (1) is being requested to sponsor the file or (2)
has announced the availability of such a file.
4. File Sponsoring Organizations:
a. Organizations sponsoring a file in the COINS Experiment will
not:
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(1) Delete a file
(2) Increase the time between file maintenance cycles nor
(3) Modify the scope and content of a file.
b. File sponsors, wishing to take such action will forward
their requests in writing to the COINS Project Manager. He will circulate
such requests to the sub system managers of all the participating
organizations for concurrence or comment, and convene a meeting of the
Data Base Panel.
(1) In actions affecting secondary files:
(a) If all participating agencies concur the file
sponsor may take the action requested.
(b) If any participating agency does not concur in the
proposed action the file sponsor cannot take the action requested for a
period of 90 days. This will permit other participants who may be using
and relying on the file sufficient lead time to make other arrangements.
(2) Requested action affecting primary files will be referred
to the DCI or his representative with panel recommendations. Requests
for deletion of primary files will be addressed to the DCI through the
COINS Project Manager giving full particulars for such action.
5. Modification of a File
a. Defined: There are three different types of modifications
that can be made on COINS files concerning (1) elements of information
within records in a file, (2) sources used to maintain a file and (3) scope
of information within a file.
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b. Request: Any participating organization can request another
agency to modify its files. Such requests should be submitted in writing
to the COINS Project Manager. At a minimum these requests should contain
the following elements of information:
(1) Full and short title of file to be modified
(2) Sponsoring agency
(3) Type of modification required
(4) Reason for modification
c. An organization requested to add, delete, or modify a file
in the system or change their file maintenance schedule will report back
to the COINS Data Base Panel within 30 days after receipt of the request.
The report will indicate:
(1) Reason why the action requested can or cannot be taken.
(2) Resources required for the requested action.
(3) Schedule for achieving the requested action (e.g., FY-71
assuming necessary additional resources are approved).
d. Non-FileSponsoring Organization: All organizations participating
in the COINS Experiment should keep all the files available in the network
and of interest to them under constant review to insure they satisfy their
information requirements.
e. File ponsors: File sponsors will not modify their file
without the prior concurrence of all other participants except as indicated
below. File sponsors can take the following actions with respect to their
file but they must notify the COINS Project Manager that such action was
taken.
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the file maintenance schedule on a file it is sponsoring.
requests will be made in writing to the COINS Project
(3) Increase the scope of their file
6, File Maintenance Schedule:
a. The file maintenance schedule initially established by the
file sponsor will be accepted (e.g., daily, weekly, monthly, yearly, etc.).
Once the file maintenance schedule for a file is announced it will not
be lengthened without the consent of all other participating organizations.
However, the file maintenance schedule can be shortened without prior
nofification or consent of the other participating organizations.
b. Any participating organizations can request another participating
organization to change
Manager.
(1) Add elements of information to their file
(2) Use additional sources of information to maintain their
(1) Such
At a minimum
(a)
(b)
(c)
(d)
(e)
these requests will
Name of file
contain the following
Name of sponsoring agency
Current file maintenance schedule
New file maintenance schedule
Reason for requesting change
(2) Upon receipt of such requests the COINS Project Manager
(a) Circulate items to all members for additional
(b) Upon receipt of all comments, the manager will send
a formal request to the sponsor of the file.
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7. Statistics on file utilization will be provided by the Computer
and Communications Interface Panel through the Test and Analysis Panel.
a. The Project Manager in coordination with the Test and Analysis
Panel will recommend Data Base Panel consideration of deleting from COINS
any file which has not been interrogated for a period of 60 consecutive days.
b. The Project Manager can initiate investigations to determine
why a file is not referenced more frequently. Such investigations can
result in the action described in paragraph 7a. above, or a request to the
file sponsor to change or modify the file to better satisfy requirements.
8. Other Considerations:
Files will not be added, deleted or modified during the evaluation
period except:
a. For an emergency situation or
b. At specifically designated periods (i.e., about once every two
months) as announced by the COINS Data Base Panel.
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CODIB-D-113/4n7
21 February 1968
U N I T E D S T A T E S I N T E L L I G E N C E B 0 A R D
COMMITTEE ON DOCUMENTATION
Panel on Files for Use in COINS
Terms of Reference
1. OBJECTIVE
To recommend to CODIB the files to be used for the COINS
Experiment and the criteria for selecting and approving files for
COINS in the future.
II. TASKS
1. Establish the criteria for determining which files should
be provided in support of the COINS Experiment including those
required to comply with the recommendations in the JIIRG Report.
In so doing, give consideration to the selection of a single area
of substantive intelligence.
2. Identify the files to be provided and the minimum essential
elements of information that should be contained in each.
3. Where appropriate, rank in priority order for each partic-
ipating USIB agency the files which are to be provided.
4. Recoimwnd for COINS guidance the criteria for selecting
and approving files in the future.
III. MEMBERSHIP
Members will be appointed from CIA, DIA, NSA and State. Other
CODNS member agencies are invited to appoint members.
IV. GUIDANCE AND REPORTING
Guidance from CODIB will be obtained through the CODIB Chairman.
A draft report should be completed by 8 March 1968 and should be
available for CODIB consideration on 13 March 1968.
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USIB-D-39.7/27
20 February 1968
UNITED STATES INTELLIGENCE BOARD
MEMORANDUM FOR THE UNITED STATES INTELLIGENCE BOARD
SUBJECT Progress on Implementation of the President's
Foreign Intelligence Advisory Board Recom-
mendation No. 2 of 15 June 1965
REFERENCE USIB-D-39.7/ 18, 8 September 1966
1. 9 5
1. The enclosed progress report on the Community On-Line
Intelligence System (COINS) experiment from the Chairman, Committee
on Documentation (CODIB) and its attachment are circulated herewith
for information and noting by the Board. The CODIB Chairman anticipates
that a full report on COINS will be available to USIB about 30 April 1968.
2. It is not planned to schedule the attachment on the agenda of a
USIB meeting unless so requested by a Board member prior to close
of business 27 February. In the absence of such a request it will be
considered for record purposes that the USIB "noted" the subject
report on that date.
25X1
Executive ecre ry
GROUP 1
Excluded from automatic
downgrading and
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